On October 9, 2020, ICLR conducted a Friday Forum webinar titled 'Reducing the Risk of Flooding by Implementing Better Practices for Sewer Construction', led by Barbara Robinson, Principal of Norton Engineering. The conceptualization, design, construction, inspection, testing and acceptance of sanitary sewers has not changed very much in the past few decades. Civil Engineering is a very conservative field, and changes are slow to be accepted. Recent research has indicated that current design and construction practices for sanitary sewers are inadequate in reducing the risk that clean water (called Inflow and Infiltration, or I/I) enters sanitary sewers. Findings indicate that sewers are leaking unacceptably (e.g. allowing much more I/I that is permitted) when they are newly constructed, resulting in increased sewer backup flood risk in the immediate area and also downstream. Indeed, instances of basement flooding in new subdivisions are unacceptably common today. This research (partially funded by the ICLR and Standards Council of Canada) has resulted in the publication of Best Practices Manuals to assist all stakeholders in building better sewers. These practices are being closely followed and implemented across Canada. For example, the Ontario Ministry of Environment, Conservation and Parks (the regulator that approves new sewers in Ontario) has incorporated many of these best practices in their Draft Sanitary Sewer Design Standards. The Standards Council of Canada is currently in the process of tendering the preparation of new national guidelines for new sewer system construction, based on this research. A second guideline is being prepared to share best practices in reducing excess water in existing sewer systems, with similar goals. This presentation presented the problem, and summarized the massive costs associated with this excess I/I - costs that have not traditionally been considered in Engineering studies. In addition, the increased risks to municipalities that do not address this excess I/I was demonstrated. Barbara Robinson, M.A.Sc., P.Eng., has been working in (literally) sanitary sewers for 30 years. As the president of Norton Engineering (est. 2015), she works across Canada assisting municipalities, provincial and federal government agencies in establishing and implementing provincial and national best practices in sanitary sewer construction, monitoring and repair. She also works as the CBC Radio 1 Infrastructure Columnist and with other media organizations.

1. Barbara A. Robinson, M.A.Sc., P.Eng.
President and Founder
Norton Engineering Inc.
nortonengineeringinc@gmail.com
www.nortonengineeringinc.ca
Sewers that Don’t Stand
the Test of Time: a Canadian Problem
ICLR Friday Forum, October 9, 2020

2.  30 years in Engineering, specifically
dealing with clean water in sewers.
 Hands on experience in the field.
 Chair of new CSA Guideline on
Basement Flood Protection and
Risk Reduction.
 Contributor to most Basement Flood
Reduction documents in Canada
 CBC Radio 1 Infrastructure columnist
across Ontario.
Norton’s Experience

3. Overview: Leaking Sewers
 Introduction
 Costs & risks
 What exactly is the problem
 What solutions/best practices
have been proposed
 Uptake & next steps
Lots and lots of extra water in sewers. Seems legit.

4. Leaking Sewers are Pretty Simple
“Inflow” and “Infiltration” (I/I)
(The only difference is how we find and fix them)

5. New Sewers are Not Being Delivered to
Municipalities in a Leak-Acceptable Condition
Leaking
98%
Not
Leaking
2%
HOW MANY MEASURED NEW SEWER
SYSTEMS SHOW EXCESSIVE LEAKING
(ONTARIO, N=85)
• Data collected since 2005 shows that new
sewers show excessive leakage at
inception, often more than the long-term
allowable amount
• The engineering, building and development
industries were unaware of this
• Leaking occurs in both public and private
side sewers
• We know sewers are leaking through visual
evidence, wastewater or pumping station
data, in-sewer flow monitoring, or flooding

6. Direct, Measurable COSTS of
New Sewers Badly Leaking
Typical Growing GTA Municipality
Treatment Costs of Leaking New Sewers
Projected New Homes in Any
GTA Municipality to 2041
330,000
Leakage as Measured in new
subdivisions in Ontario
1.4 m3/d/house
Total Cost of Base Leakage
(just one Municipality!)
$475,000,000
per year

7. Chronology of this Body of Work
• The first new subdivision that was leaking was found in
2005
• When Norton was founded in 2015, detailed research
into this phenomena was initiated
• The work was, and is, funded directly by municipalities
who recognize the value to them in reducing I/I
• The Institute for Catastrophic Loss (ICLR) was a
foundational sponsor (since 2016) and has supported
ongoing research, pilot projects and standards
development to develop of better practices

8. What does this Clean Water Cost?
The present value of a single 1 L/s of I/I, over a 40-year life is $1,000,0001
1: (@ $1.50/m3 and 3%), for treatment costs alone

9. What does this Clean Water Cost?
This capacity could be used to:
- Reduce routine backups & flooding
- Reduce catastrophic flooding
- Allow more new development
- Delay the need to expand
wastewater treatment plants
- Ensure sewers reach their design
life (leaking sewers fail sooner)
“The real savings for a
municipality lies in the ability
to defer infrastructure upgrade
costs (sewers and treatment
plants). While flooding costs
grab public attention and can
influence voting outcomes, it
is the everyday costs that
utilities silently struggle
against and transfer quietly to
rate payers.”
David Kellershorn, P.Eng., Manager, Stormwater, City
of Toronto, October 2020
But also:
- Reduce insurance claims
- Reduce non-insured costs to
homeowners
- Reduce staff costs associated with
flooding events ($$$)

10. I/I in all Existing Sewer Systems:
A Tale of Two Cities
- 10,000,000 20,000,000
Billed Water (Measured at
Homes)
Wastewater Influent (Incoming
to WWTP)
Water & Wastewater, City “A”
2015 (m3/year)
• City “A” treats 5,730,000 m3 of clean water a year ($15.8 million)
• City “B” treats 5,590,000 m3 of clean water a year. ($15.4 million)
- 10,000,000 20,000,000
Billed Water (Measured at
Homes)
Wastewater Influent (Incoming
to WWTP)
Water & Wastewater, City "B“
5-Year Average (m3/year)

11. Excessive I/I has numerous negative
consequences, including:
 Impacts on the environment, public
health and safety
 Acute and ongoing financial impacts
for municipalities, insurers,
taxpayers and homeowners
 Not included are the risks to
homeowners of denial of
insurance, increased premiums,
and capping of payouts
The Societal Costs of Excess Inflow and
Infiltration (I/I) are Very High, and Climbing
These negative impacts
of I/I are expected to
intensify in many regions
under projected changes

12. And, it Begins
There is a Connection Between Leaking Sewers and Flooding
 New subdivisions are
experiencing basement backup
and flooding
 Recently in Ontario:
 Ottawa area (3)
 Small town east of Toronto
 Town north of GTA
 Several in SW Ontario
 Thunder Bay area

13. Municipalities are Starting to be held Liable

14. What is the Problem?
Brand New Sewers Leaking
Large GTA Municipality
Sewers
Rainfall, mm/hr
Flow, L/s

15. Large GTA Municipality
New Sewers are Overwhelmed When it Rains
Rainfall, mm/hr
What is the Problem?
Data Categorized as Excessive by Others

16. What is the Problem?
Extra Water Reduces the Useful Life of a Sewer
Source: WEF/ASCE Existing Sewer Evaluation & Rehabilitation, Manual of Practice 6

17. “A cracked fitting which failed from the weight of the fill placed over it and
inadequate support...this basement flooded in an extreme weather event”
What is the Problem?
Pipe Installation on Private Side leads to Flooding

18. What is the Problem?
(We CCTV Inspect Sewers)
Look for wows, dips, rock indentations, flow path and joints

19. We can see sewers leaking when
we CCTV them: most public side
sewers are CCTV inspected.

20. What are the Underlying Causes of
Unacceptable I/I in New Subdivisions
 Lack of understanding of
guidelines & standards
 Jurisdiction
 Conflict of interest
 Silos
 Political pressure*
 Code focus
 Materials used
 Code Interpretation
*Political pressure or perceived political pressure is reported widely

21. What are the Causes and Conditions
Different Jurisdictions

22. What are the Causes and Conditions
Public Side Air & Water Testing
YES
28%
NO
69%
Other
3%
MUNICIPALITIES PERFORMING AIR & WATER TESTS
IN NEW SUBDIVISIONS
Survey Size:
50
If suggested by CCTV
* Remember that we test to ensure pipes are watertight and don’t allow clean water to enter sewers

23. YES
5%
NO
90%
Other
5%
Building Departments Performing
3m Water Column or Air Test
of Private Laterals
Test function
not understood
Survey Size:
60
What are the Causes and Conditions
Private Side Air & Water Testing

24. Required Test per OPS or MOECC Percentage of
Municipalities
Reporting Requiring
the Test
Feeler Gauge Test of Each Gasket 0%
Mandrel (out of round) Test on Sewers 29%
Air or Water Tests on Sewers 28%
MH Infiltration/Exfiltration Tests 20%
CCTVing of Laterals to P/L 12%
We have a problem.
What are the Causes and Conditions
Other Required Tests

25. PVC Pipes are FLEXIBLE

26. This isn’t going to last.

27. Failing a Mandrel (Roundness)Test

28. What are the Causes and Conditions
Issues on the Public Side (governed by Provincial
Guidelines & Specifications; ultimately owned by
the municipality):
 Required tests not being performed
 Best available technologies not being applied or not
available
 Inspection by the developer’s engineering consultant
 Insufficient municipal staff to oversee work
 Perceived or actual political pressure
 Folks who work with I/I disappear after public side
complete.
 Municipalities do not check flows in new
construction.

29. Issues on the Private Side (governed by the Building
Code; ultimately owned by the homeowner):
 Building Code was not developed with sewers in mind
 Building staff are not trained in sewer systems
 Installation methodology for PVC pipe & PVC pipe type
 Building Code interpretation
 Most work takes place without third party oversight.
 Inspection of the connection at property line not
explicitly called for
What are the Causes and Conditions

30. Direct Quotes on “Political Pressure”
“We see political pressure
from Council not to enforce
our standards”
~Large Canadian Municipality,
SCC Committee 2019
“Developers have a lot of
power and are steamrolling
the municipality”
~Heard on MECP New Sewer
Design Committee, 2019
“It was a pleasure to meet you,
someone who understands the
frustrations I go through dealing
with I & I issues within new
subdivisions. I loved your
presentation yesterday.”
~Operations guy, Local Municipality in
Large GTA Region, 2019
Former Toronto city councilor Maria Augimeri,
said developers constantly pressure the TRCA to
quickly issue permits for construction that could
impact wetlands, ravines and other sensitive
green space.
~Toronto Star
“We have developer
consultant who
wants us to accept
160 l/c/d for for
sewer flow design
because new
sewers don’t leak.”
~Single tier
Municipality, north of
GTA 2018
“Many municipal employees
reported feeling pressure
from the developer, with the
perception that developers
will approach senior
management and politicians
if they are not satisfied.
Whether this occurs or not,
the perception is sufficient to
discourage municipal
employees from being too
stringent with testing and
acceptance.”
~“Unacceptable I/I in New
Subdivisions”, Norton
Engineering Inc., 2017
“Political influence is
preventing good practice.”
~Large GTA Municipality, SCC
Committee 2019

31. CSA Standard for Pipe is the same on the
Public and Private Sides
Ontario
standards/codes
refer to the same
CSA Standard for
materials for laterals
on public and private
sides
We need better practices!

32. “Sanitary public and private side
lateral sewers should be SDR28,
100 mm in diameter and green in
colour.”
Standardize Pipe Sizes & Colour
“Storm public and private side
lateral sewers should be SDR28,
125 mm in diameter and white in
colour.”
Pipe layers working in the field have no idea
of the importance of correct connections.

33. Design of Sewers and Maintenance Holes in
High Groundwater Conditions
“Where the invert of
the sewer and MHs
are below seasonally
high groundwater
elevation, they should
be designed to be
watertight (e.g. to
drinking water
standards).” Source: R. Kowal & L. Pike, Trenchless Technology, April 2013
We specify leak testing technique in OPSS based on GWT elevation; why not design??

34. National Standards

35. Provincial Standards

36. Municipal Standards

37. Publications

38. Work with Media for Public Education in Sewers

39.  Every drop of clean water that enters a
sewer on either side of the property line
puts individual homes at higher risk of
flooding
 Exacerbated by increased flows due to
climate change
 “Engineering” solutions do not require
accurate models, predictions, etc.:
 We can improve our practises
around inspection, testing, approvals
 Codes can be updated to reflect
latest findings about leaking sewers
 Education across Silos is essential
Great News:
This Work does not Require Climate Change Predictions

40. It’s a great day to build better sewers, better.